World Bank Document...SPP Surat Permintaan Pembayaran (Payment Request) SPP Simpan Pinjam Perempuan (Women Saving and Loan Activities) TA Technical Assistance TOR Tim Koordinasi Tim

Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No: RES18443

RESTRUCTURING PAPER

ON A

PROPOSED PROJECT RESTRUCTURING

OF

NATIONAL PROGRAM FOR COMMUNITY EMPOWERMENT IN

RURAL AREAS (PNPM RURAL 2012-2015)

IBRD 82170-ID

BOARD APPROVAL DATE: DECEMBER 11, 2012

TO THE

REPUBLIC OF INDONESIA

JUNE 9, 2015

Global Practice for Social, Urban, Rural Resilience

Indonesia Country Management Unit

East Asia and Pacific Region

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ABBREVIATIONS AND ACRONYMS

AAA Analytic and Advisory Activities

ASF Administrative Service Firms

BAPPENAS Badan Perencanaan dan Pembangunan Nasional (National

Development Planning Agency)

Bina Pemdes Bina Pemerintahan Desa (Village Government)

BKAD Badan Koordinasi Antar Desa (Inter-Village Cooperation

Board)

BLM Bantuan Langsung Masyarakat (Block Grant)

BPD Badan Permusyawaratan Desa (Elected Village

Representative Council)

BP-UPK Badan Pengawas – Unit Pengelola Kegiatan (Community-

Appointed Oversight Body of the Sub-district Management

Unit)

Bupati Head of District

Camat Head of Sub-District

CHS Complaint Handling System

DFAT Department of Foreign Affairs and Trade

DIPA

DG

Government Budget

Directorate General

DPR Dewan Perwakilan Rakyat (The People's Representative

Council)

EIRR Economic Internal Rate of Return

FM Financial Management

GOI Government of Indonesia

IRI Intermediary Results Indicators

IT Information Technology

Kabupaten District

Kecamatan Sub-District

M&E

MIS

Monitoring and Evaluation

Management Information System

MOF Ministry of Finance

MOHA Ministry of Home Affairs

MOV Ministry of Village, Disadvantaged Areas and

Transmigration

NMC National Management Consultant

O&M Operations and Maintenance

OM Operations Manual

PDO Project Development Objective

PjOK Penanggung-jawab Operasional Kegiatan (Local

Government Project Officer at the Sub-District Level)

PjOKab Penanggung-jawab Operasional Kabupaten (Local

Government Project Officer at the District Level)

PjOProv Penanggung-jawab Operasional Provinsi (Local

3

Government Project Officer at the Provincial Level)

POKJA Kelompok Kerja (Working Group)

PMD Pemberdayaan Masyarakat dan Desa (Directorate for

Community and Village Empowerment)

PMK Pembangunan Manusia dan Kebudayaan (Coordinating

Ministry for Human Development and Cultural Affairs)

PNPM Program Nasional Pemberdayaan Masyarakat (National

Program for Community Empowerment)

PPMD Pembangunan dan Pemberdayaan Masyarakat Desa

(Village Development and Empowerment)

PTO Operations Manual

QPR Quarterly Progress Report

RBM Ruang Belajar Masyarakat (Community Learning Forum)

RLF Revolving Loan Fund

RMC Regional Management Consultant

Satker Satuan Kerja (Project Management Unit)

SPP Surat Permintaan Pembayaran (Payment Request)

SPP Simpan Pinjam Perempuan (Women Saving and Loan

Activities)

TA Technical Assistance

TOR

Tim Koordinasi

Term of Reference

Tim Percepatan Pengalihan PNPM Mandiri Perdesaan dan

Persiapan Pelaksanaan UU No. 6 Tahun 2014

Kelompok Kerja Pengendali (National-level oversight body

for the acceleration of PNPM Mandiri Transition and the

preparation of the implementation of Law No. 6/2014)

TPK Tim Pengelola Kegiatan (Village Implementation Team)

ULP Unit Layanan Pengadaan (Procurement Services Unit)

UPK Unit Pengelola Kegiatan (Sub-district Financial

Management Unit)

VL Village Law

4

Regional Vice President: Axel van Trotsenburg

Country Director: Rodrigo A. Chaves

Senior Global Practice Director: Ede Jorge Ijjasz-Vasquez

Acting Practice Manager: Kevin Tomlinson

Task Team Leader: Sonya Woo

5

INDONESIA

NATIONAL PROGRAM FOR COMMUNITY EMPOWERMENT IN

RURAL AREAS 2012-2015

CONTENTS

ANNEX 1 .................................................................................................................................... 18

RESULTS FRAMEWORK AND MONITORING .................................................................. 18

6

DATA SHEET

Indonesia

NATIONAL PROGRAM FOR COMMUNITY EMPOWERMENT IN RURAL AREA (PNPM

RURAL 2012-2015 (P128832)

EAST ASIA AND PACIFIC

Social, Urban, Rural and Resilience Global Practice

Report No: RES18443

Basic Information

Project ID: P128832 Lending Instrument: Specific Investment Loan

Regional Vice President: Axel van Trotsenburg Original EA Category: Partial Assessment (B)

Country Director: Rodrigo A. Chaves Current EA Category: Partial Assessment (B)

Senior Global Practice

Director: Maninder S. Gill Original Approval Date: 11-Dec-2012

Practice

Manager/Manager: Kevin A Tomlinson Current Closing Date: 31-Dec-2015

Team Leader(s): Sonya Woo

Borrower: TNP2K, BAPPENAS, MOHA PMD, Ministry of Finance

Responsible

Agency: Menko Kesra, Ministry of Village, Disadvantaged Areas and Transmigration

Restructuring Type

Form Type: Full Restructuring Paper Decision Authority: Country Director Approval

Restructuring

Level:

Level 2

Financing ( as of 12-Mar-2015 )

Key Dates

Project Ln/Cr/TF Status Approval

Date Signing Date

Effectiveness

Date

Original

Closing Date

Revised

Closing Date

P128832 IBRD-82170 Effective 11-Dec-2012 22-Jan-2013 25-Mar-2013 31-Dec-2015 31-Dec-2015

Disbursements (in Millions)

Project Ln/Cr/TF Status Currency Original Revised Cancelle

d

Disburse

d

Undisbur

sed

%

Disburse

d

P128832 IBRD-82170 Effective USD 650.00 650.00 0.00 396.57 253.43 61

Policy Waivers

Does the project depart from the CAS/CPF in content or in other significant

respects? Yes [ ] No [ X ]

7

Does the project require any policy waiver(s)? Yes [ ] No [ X ]

A. Summary of Proposed Changes

Modifications include: (a) Changing the implementing agency from the Ministry of Home Affairs (MoHA)

to the new Ministry of Village, Disadvantaged Areas and Transmigration (MoV); (b) Amending select

intermediary results indicators in the results framework (RF); and (c) Extending the Loan Closing Date

from December 31, 2015 to December 31, 2016 and updating the implementation schedule accordingly.

Change in Implementing Agency Yes [ X ] No [ ]

Change in Project's Development Objectives Yes [ ] No [ X ]

Change in Results Framework Yes [ X ] No [ ]

Change in Safeguard Policies Triggered Yes [ ] No [ X ]

Change of EA category Yes [ ] No [ X ]

Other Changes to Safeguards Yes [ ] No [ X ]

Change in Legal Covenants Yes [ X ] No [ ]

Change in Loan Closing Date(s) Yes [ X ] No [ ]

Cancellations Proposed Yes [ ] No [ X ]

Change to Financing Plan Yes [ ] No [ X ]

Change in Disbursement Arrangements Yes [ ] No [ X ]

Reallocation between Disbursement Categories Yes [ ] No [ X ]

Change in Disbursement Estimates Yes [ X ] No [ ]

Change to Components and Cost Yes [ X ] No [ ]

Change in Institutional Arrangements Yes [ X ] No [ ]

Change in Financial Management Yes [ X ] No [ ]

Change in Procurement Yes [ X ] No [ ]

Change in Implementation Schedule Yes [ X ] No [ ]

Other Change(s) Yes [ ] No [ X ]

Appraisal Summary Change in Economic and Financial Analysis Yes [ X ] No [ ]

Appraisal Summary Change in Technical Analysis Yes [ X ] No [ ]

Appraisal Summary Change in Social Analysis Yes [ ] No [ X ]

Appraisal Summary Change in Environmental Analysis Yes [ ] No [ X ]

Appraisal Summary Change in Risk Assessment Yes [ X ] No [ ]

B. Project Status

Overall, the Project continues to achieve tangible results and is highly valued by communities and local

governments. At least two of the Project’s outcome indicators have already been exceeded: (i) reports on

public participation confirm that approximately 3.6 million communities have participated in democratic

forums for planning, implementing and overseeing initiatives that directly address local development

priorities; and (ii) more than 50% of beneficiaries are females. While a number of surveys to verify the

Project’s outcome values are yet to be carried out (planned for early 2015), given that the Project is

making good progress towards meeting the majority of its intermediary results indicators (IRIs), and based

8

on its overall implementation progress as well as the performance of the Project’s predecessor (PNPM IV),

it would be reasonable to assume that the Project is making good progress towards reaching its objectives.

In terms of implementation progress, as of December 2014, more than 93 percent of the total Block Grant

budget for FY2014 was disbursed from the Treasury Office to the PNPM Sub-District Financial

Management Units (UPKs). For the most part, the Bank’s supervision and evaluation studies confirm the

economic efficiency of the infrastructure implemented under this component and beneficiary satisfaction

levels with regard to the prioritization and quality of infrastructure. Activities under Components 2

(Community Empowerment and Facilitation) and 3 (Implementation Support and Technical Assistance)

are also underway. Key achievements include the engagement of more than 14,000 facilitators in 2014;

and geographic coverage of supervision, which reached 70% of 391 Districts (carried out by the National

Management Consultant) and an average of 75% of 5,146 Sub-Districts (carried out by the Regional

Management Consultants).

However, more recently, the Project’s Mid-Term Review, conducted in November 2014, and a technical

mission, conducted in January 2015, found that the Project’s performance had weakened in some areas. To

this end, the Project was significantly impacted by the Village Law No. 6/2014 (VL). The passing of the

VL prompted key institutional and sectoral changes, which in turn, affected the portfolios of certain

ministries and resulted in delays in the GOI’s approval of the Project’s budget for 2015. Key activities

such as facilitation and consultant supervision were subsequently suspended as their contracts expired on

December 31, 2014. GOI is now taking decisive action to address these issues and recommence Project

implementation. Therefore, despite these challenges, and given the progress made in the earlier part of the

Project, it is expected that the Project's development objectives will still be achieved.

C. Proposed Changes

Change in Implementing Agency

Implementing Agency Name Type Action

Menko Kesra Implementing Agency Marked for Deletion

Ministry of Village, Disadvantaged Areas

and Transmigration Implementing Agency New

Development Objectives/Results

Project Development Objectives

Original PDO

The PDO of the Project is for villagers in PNPM-Rural locations to benefit from improved local

governance and socio-economic conditions.

Change in Project's Development Objectives

Change in Results Framework

Explanation:

The following changes will align the RF with the Project’s emerging results and will ensure that the new

implementing agency can focus on fewer but clearer, measurable indicators: (a) a modification to the

baseline and target values of the total number of beneficiaries and its related baseline measurement and

target values from 40 to 30 million; (b) amending the language associated with three IRIs relating to the

completion of work plans, the Revolving Loan Fund (RLF), and the UPK (PNPM Sub-District Financial

Management Units) management of the RLF; (c) deleting two IRIs that monitor annual coordination

meetings and the economic empowerment stakeholder fora, which do not feature in the Project's

9

implementing or monitoring arrangements and do not provide any measurable insights on performance;

and (d) the end-of-project dates will change to December 31, 2016 to reflect the new loan closing date.

Change in Legal Covenants

Explanation:

The language used under the existing legal covenant on institutional arrangements will be amended to

reflect the new implementing agency and the need to establish a new Secretariat by July 31, 2015. The

following covenants will be added: (1) the Borrower, through MoV, shall develop terms of reference

(TORs) and confirm the appointments of the following consultants in a manner satisfactory to the

Borrower and the Bank not later than July 31, 2015: (a) Team Leader; (b) Two Senior Financial

Management Officers; (c) Senior Procurement Officer; and (d) Senior MIS Specialist; (2) the Borrower,

through MoV, shall ensure the issuance of TORs and standard operating procedures for the in a manner

satisfactory to the Borrower and the Bank not later than by June 30, 2015; and (3) the Borrower, through

MoV, shall develop guidelines for facilitation, the closure of PNPM Rural, the transfer of assets and the

management of revolving funds by December 31, 2015.

Ln/Cr/T

F

Finance

Agreement

Reference

Description of Covenant Date

Due Status

Recurre

nt

Frequen

cy Action

IBRD-

82170

Schedule 2,

Section

I.A.1(c)(v)

The Borrower, through

PMD, shall establish the

Joint Secretariat

comprised of

representatives of the

relevant directorates in

PMD to improve

coordination and

programming, including

budgeting, of PNPM

activities by July 1, 2013.

01-Jul-

2013

Not

complied

with

Revised

IBRD-

82170

Schedule 2,

Section

I.A.1(c)(v)


MoV, shall establish and

maintain, until the

completion of the Project,

the Secretariat, with a

mandate, staff

composition, filled staff

positions, and TORs

acceptable to the Bank

and the Borrower, to be

responsible for improving

general coordination,

coherence and budgeting;

and ensure that it shall be

provided with adequate

resources, supported by

qualified personnel

comprising of relevant

directorates from within

MoV including legal,

technical, procurement

31-Jul-

2015

Not yet

due

Proposed

10

and financial consultant

specialists in adequate

numbers as needed to

accomplish the objectives

of the Project.

IBRD-

82170

Schedule 2,

Section II.B 8


PMD, shall ensure that

the relevant Camat and

Bupati in each Project

Kecamatan and Project

Kabupaten shall make

publicly available, in a

manner acceptable to the

Borrower and the Bank, a

report on the results of

Project implementation

and accounts for funds

used during each year of

Project implementation,

by no later than May 15

of each subsequent year.

Complie

d with

Yearly No

Change

IBRD-

82170

Schedule 2,

Section II.B 9


PMD, shall ensure that

all annual audit reports

referred to in Section II.B

of this Schedule 2,

including Kabupaten

audit reports, shall be

published on the PNPM

Website by no later than

September 30 in each

year of Project

implementation.

After

delay

complied

with

Yearly No

Change

IBRD-

82170

Schedule 2,

Section II, B

(c)

No withdrawal shall be

made under

category (1) in the table

in SectionI.A of this

Schedule 2 for

Kecamatan Grants unless

the Borrower has adopted

a revision to the

Operations Manual

satisfactory to the

Borrower and the Bank.

31-Mar-

2013

Complie

d with

No

Change

IBRD-

82170

Schedule 2,

Section I.A 1

(c) (i)


MoV, shall ensure the

issuance of terms of

reference and standard

operating procedures for

the Facilitators in a

30-Jun-

2015

Not yet

due

New

11

manner satisfactory to the


IBRD-

82170

Schedule 2,

Section I.A 1

(c) (i)


MoV, shall finalize the

terms of reference and

confirm the appointments

of: (a) a Team Leader;

(b) two senior financial

management officers; (c)

a senior procurement

officer; and (iv) a senior

management information

system specialist.

31-Jul-

2015

Not yet

due

New

IBRD-

82170

Schedule 2,

Section I.A 1

(c) (i)


MoV, shall develop

guidelines for facilitation,

the closure of PNPM

Rural, the transfer of

assets and the

management of revolving

funds in a manner

satisfactory to the


31-Dec-

2015

Not yet

due

New

Financing

Change in Loan Closing Date(s)

Explanation:

A 12 month extension of the Loan closing date is proposed to compensate for the delays associated with

the change in institutional arrangements and delayed budget availability; and to facilitate the successful

completion and handover of project activities and assets and achieve the PDO. This will be the first

extension of the closing date.

Ln/Cr/T

F Status

Original Closing

Date

Current Closing

Date

Proposed Closing

Date

Previous Closing

Date(s)

IBRD-

82170 Effective 31-Dec-2015 31-Dec-2015 31-Dec-2016 31-Dec-2015

Disbursement Estimates

Change in Disbursement Estimates

Explanation:

The Project has disbursed more slowly than projected due to implementation delays associated with project

management start-up issues and delayed provision of counterpart funds (DIPA). It is unlikely that MoV

will be able to utilize the remaining loan funds before the end of FY2015 given the delays in providing

DIPA, which are not anticipated to be provided again until September 2015. The disbursement estimates

are therefore realigned with the new Loan closing date of December 31, 2016.

Fiscal Year Current (USD) Proposed (USD)

2013 333,000,000.00 50,000,000.00

2014 125,000,000.00 300,000,000.00

12

2015 150,000,000.00 50,000,000.00

2016 42,000,000.00 210,000,000.00

2017 0.00 40,000,000.00

Total 650,000,000.00 650,000,000.00

Components

Change to Components and Cost

Explanation:

Component 3 provides oversight, technical advisory services, training and other support for: (a) PNPM at

the national and sub-national levels; (b) strengthening of the implementing agency; and (c) incremental

activities generated by the Project. It focuses on strengthening the overall delivery system to ensure that it

can respond effectively to emerging demands. There are no significant changes to the Component’s overall

objectives and costs. However, the changes will introduce a new sub-components in the Project's

description: "Part 3a" of the Project will be implemented by MoV. However, the Project's overall

disbursement arrangements remain unchanged.

Current Component

Name

Proposed Component

Name

Current Cost

(US$M)

Proposed

Cost (US$M) Action

Kecamatan Grants 3,723.77 3,723.77 No Change

Community

Empowerment and

Facilitation 496.21 496.21 No Change

Implementation Support

and Technical Assistance 280.03 280.03 No Change

Total: 4,500.01 4,500.01

Other Change(s)

Change in Institutional Arrangements

Explanation:

The Implementing Agency will change from MoHA to MoV in accordance with Presidential Regulation

12/2015 and 13/2015. The Project will be implemented by the Directorate General (DG) for Village

Development and Empowerment at MoV.

The new structure will consist of six DG offices, one of which is the DG of Village Development and

Empowerment (“PPMD.”) This DG will be comprised of five Directorates, one of which will be the

Directorate for Village and Community Empowerment. This DG will be responsible for the completion of

PNPM Rural and also contain the Central Satker (National Project Management Unit), which will be

headed by the Director. To ensure coherence in the implementation of policy and programming, a

Secretariat consisting of representatives from MoHA, MoV and key specialists will be established. This

will help to ensure continuity and coordination in programming as well as provide additional management

and technical capacity to support MoV in the finalization and handover of tasks anticipated under PNPM

Rural and planning under the implementation of VL.

The Project's institutional arrangements and technical assistance structure (TA) under the DG for Village

and Community Empowerment will replicate the national structure that was established under MoHA with

some minor modifications:

13

(i) The DG of Village Development and Empowerment is responsible for the finalization and closure of

PNPM as well as the implementation of VL. In accordance with Presidential Regulation 12/2015, the DG

is responsible for village development and empowerment. Its main duties will focus on organizing and

formulating the implementation of policies in the field, including those that relate to the: (a) management

of basic social services; (b) business development of rural economy; (c) utilization of natural resources and

appropriate technology; (d) development of rural infrastructure; and (e) empowerment of rural

communities.

(ii) The DG for Village and Community Empowerment (and Central Satker/National Project Management

Unit) serves as the national program management unit and functions under the DG for Village and

Community Empowerment. The Central Satker: (a) is responsible for the overall management and general

administration of the PNPM and VL technical planning; (b) administers regulations and implements

policies relating to the closure and handover of PNPM assets to local governments; (c) is responsible for

managing the budget for the PNPM, including contracting of consultants and Administrative Service Firms

(ASFs); and (d) instructs Provincial Governments to establish PNPM Provincial Satkers to manage

facilitators and PNPM District Satkers to assist and coordinate project activities as well as prepare for VL

implementation at the District level and below.

(iii) The Secretariat: (a) provides national level support and assistance to the Central Satker on the

development of operational guidelines, standard operating procedures and provides technical,

administrative and fiduciary support for both the PNPM and VL planning; and (b) is comprised of

government officers from MoV and MOHA as well as key consultant specialists and supporting staff.

(iv) The Head of the Secretariat will be appointed by the Director of the Central Satker. The position will

manage day-to-day activities of the Secretariat. A key function of this role will be liaising with other GOI

agencies and development partners.

(v) Additional coordination will be provided by the Team for Acceleration on PNPM Mandiri Transition

and the Preparation of the Implementation of Law No. 6 ("Tim Percepatan Pengalihan PNPM Mandiri

Perdesaan dan Persiapan Pelaksanaan UU No. 6 Tahun 2014") chaired by Menko Bidang PMK, with

representatives of relevant ministries, including BAPPENAS (National Development Planning Agency),

MOHA, Ministry of Finance, MOV and Ministry of Communication and Information.

In addition, the implementing arrangements at the sub-national level, for the most part, will remain intact

with the exception of the following key changes: (a) the Activity Management Units (UPK) may be

transitioned into a unit under the Inter-Village Cooperation Board (BKAD); (b) Village Governments will

assume a stronger role in determining and managing empowerment and development activities; and (c) the

Activity Implementation Teams will be replaced by Village Implementation Teams.

Change in Financial Management

Explanation:

A financial management (FM) assessment of MoV was undertaken to determine whether the MoV’s FM

system has the capacity to produce timely, relevant and reliable financial information to support the

closing process of Project and transition arrangements for the implementation of the VL; and if the FM

arrangement for the Project’s expenditures and underlying internal controls are adequate to meet the

Project’s fiduciary needs and satisfy the Bank’s OP/BP 10. It was concluded that the Project’s funds flow

arrangements, FM systems and organization at the local level will remain the same. Therefore, the FM

assessment dated September 21, 2012 (last revision) for the Project is applied, including all risks (fiduciary

risk is rated as Substantial) and mitigation measures. However, the recent delays in approving the DIPA,

which resulted in the suspension of field supervision activities, may warrant the need for a higher FM risk.

14

Furthermore, changing the Central Satker, creates three additional risks. The first risk is the FM capacity

of the national staff, since MoV has limited experience in managing the Project. The second risk is the

internal control on transferring PNPM assets, especially the RLF Capital, in the absence of consultants and

facilitators. The third risk is the ability to manage the Complaints Handling System (CHS) and resolve the

back-log of outstanding cases. To partially mitigate these risks, it was agreed that the Secretariat will: (i)

include a minimum of two FM consultants; (ii) re-engage the Project’s consultants and facilitators as soon

as the DIPA is approved; and (iii) transfer the CHS server from MoHA, appoint a Legal Advisor in the

Secretariat who will backstop the District Governments and Complaints Handling Specialists based at in

Provincial Coordinators Office, and support the Senior Micro Finance Specialist on the RLF. In addition,

the Bank through its “Programmatic-AAA” facility will provide technical assistance to help GOI

strengthen certain aspects of the Village Law Public Financial Management System. Another FM

assessment will be completed after the establishment of the Project Management Unit and Secretariat.

Change in Procurement

Explanation:

An assessment of MoV’s procurement systems and capacities was carried out. It concluded that

procurement under the Project will continue to be carried out following applicable Bank’s Procurement

and Consultant Guidelines in accordance with Loan agreement. MoV confirmed that a Procurement

Services Unit (ULP) is already established in MoV and the procurement under the Project is expected to be

carried out by the Procurement Committee (POKJA) under the same ULP. In addition, as part of the

transfer of staff from MoHA’s PMD to MoV, it was expected that some members of the current

Procurement Committee (POKJA) under the ULP of PMD/MOHA (responsible for procurement under the

PNPM-Rural Project) would also be transferred. MoV requested that the Bank conduct the first

procurement training immediately after the Satker and Secretariat are established. It was also agreed that

MoV would immediately recruit a Senior Procurement Officer within the Secretariat. In the interim, the

Bank will continue to provide technical support as needed.

While no significant changes are envisages, the main risk from a procurement perspective during the

transition from MoHA to MoV, is to ensure that the Project handover included a comprehensive

stocktaking and inventory of contracts certified by MoHA. To this end, the Bank was informed that the

contracts for the NMC and ASFs for seven regions and other contracts executed under the current Project

have been terminated. To this end, the contracts in terms of physical progress, actual payments, pending

claims/disputes, will need to be reconciled. MoV agreed that such reconciled statement information will

be provided to the Bank upon issuance of the official note for transferring the Project. The Bank informed

MoV that in order to ensure continuity of services under the Project, MoV should finalize the TORs/Bill of

Quantities and related specifications consider contracting the same firms on a Direct Contracting basis

using the same unit rates subject to their satisfactory performance. For the ASFs, MoV confirmed that it

will re-engage the firms for a further four to nine months, subject to the availability of the funds. It was

informed that the contracts are expected to be financed by both the Loan and Government funds. The Bank

agreed to re-procure the firms through single-source selection/direct contracting and/or consider other

firms selected by MoV as well as use other applicable competitive methods. These proposed scenarios

could be applied for the partial or full duration of the Project but were subject to the submission of the

updated contract status. MoV will prepare a draft Procurement Plan by June 30, 2015.

In addition, it was agreed that the same scheme for selection and hiring of facilitators (as individual

consultants) on the basis of single-source selection with the previous facilitators will be applied. MoV

informed that based on the current circumstances of the Project, some of the previous facilitators may no

longer available in view of their other contractual commitments, and that in such cases, selection of new

facilitators will be carried out through competitive selection (i.e. comparison of 3 CVs) and/or single-

source selection if more than one qualified candidate is not available, which was agreed to by the Bank. It

was further agreed that based on the availability of funds in the DIPA, the contractual scheme would be the

15

same (hired by Provincial Satker). MoV further confirmed that the Procurement at the community level

shall be carried out following a revised Project Operations Manual. However, since all loan funding has

already been expended, reimbursed and accounted for under the block grant (BLM), these new

arrangements would not have an impact on Loan financing as the remaining funds would be utilized for

facilitation, capacity development and consultant support.

Change in Implementation Schedule

Explanation:

The Project's implementation schedule will be realigned with the extension of the Closing Date to

December 31, 2016. The main focus during the remaining Project period will be on reactivating the

facilitation and technical assistance structure to support closing out activities, which will involve, inter

alia, ensuring that all assets financed by the Project are handed over to the village governments in

accordance with Village Law 6/2014; that an inventory of all assets (both physical and financial) is carried

out, valued and certified by respective government authorities; and that the financial closing of project

books and accounts as well as the monitoring and information system is completed. In addition, further

resources will be made available to support GOI’s first year planning for Village Law implementation. A

revised work plan and budget for 2015-2016 are currently being prepared and will be submitted to the

Bank for prior review by June 30, 2015.

Appraisal Summary

Appraisal Summary Change in Economic and Financial Analysis

Explanation:

An updated Economic Internal Rate of Return (EIRR) survey to verify the Project’s economic value,

economic impacts from cost-savings, higher productivity/lower cost to access, and local level multipliers

will be carried out in mid-2015. However, it is reasonable to assume that the economic impacts of

subprojects financed by the Project would remain consistent with previous estimations. At the same time,

the economic value could be lower than EIRRs of subprojects presented in the 2012 study because the

study: (i) assumed a low shadow wage rate factor for unskilled labor; and (ii) assumed that benefits

generated by a subproject remained constant over time until the end of its service life, even though benefits

should in practice gradually decline because of maintenance—in addition to the fact that most Sub-

Districts in the country have by now received several rounds of block grants, and may well have used the

first rounds to finance the most economically viable subprojects. The economic impact of most subprojects

will, in all likelihood, remain above the economic opportunity cost of capital. Taking into account these

qualifications, and the fact that the majority of the intended infrastructure subprojects have already been

completed within the existing time frame, the proposed changes are unlikely to significantly affect the

Project’s overall economic impact.

A financial analysis is only applicable for the use of the RLF. While up to 20 percent of the BLM is

eligible for reimbursement under block grants for RLFs and training, in 2013 and 2014, percentages

reimbursed are estimated to have only amounted to 6% and 9%, respectively. Given that the RLF remains

a small portion of the loan amount, impact evaluations have not included the RLF, and as such, the overall

financial efficacy of the program and its development impact on beneficiaries remains unclear. However,

almost 40% households in a 2012 beneficiary survey claimed to have benefited from the RLF and other

economic-related activities. At the same time, the information reported by the NMC points to the fact that

certain aspects of the RLF’s overall performance have deteriorated over time. As of September 2014, the

percentage of Non-Performing Loans constituted about 34 percent of RLF portfolio (compared with a

target of 18 percent for 2014); and 57 percent of UPKs are evaluated as administratively and financially

healthy (compared with a target of 70 percent for 2014).

Appraisal Summary Change in Technical Analysis

16

Explanation:

The Project’s technical approach and structure will largely remain the same, including the role of technical

assistance in the delivery system. The contracts for the six Regional Management Consultants (RMCs),

which were suspended on December 31, 2014, will be retendered by MoV with some modifications to

their scope of works. Funds have been made available in the national budget for the Provincial Satkers to

be re-established in order to re-engage the 14,000+ District and Sub-District facilitators and hire additional

facilitators to meet the growing planning needs under VL implementation. However, some modification to

the scope of consultant support will be required in order to strengthen the integration of national

consultants within the Secretariat and implementation of reforms to the facilitation and training system.

Given the former implementing agency’s past experience, and in view of the changing institutional

context, MoV will hire consultants, as needed, on an individual basis and at the same time, retender a new

National Management Consultant (firm) contract, to support the additional oversight needed for VL

implementation.

In view of the winding down of the PNPM Rural program and commencement of the VL, TORs for

consultants and facilitators will be revised to focus on the completion of the PNPM Rural and safeguarding

of assets, while at the same time, beginning to support planning needs under VL implementation. Revised

TORs for both the technical and social facilitators will be prior reviewed by the Bank. The curriculum for

the facilitators’ refresher training will be realigned with new tasks, and discussions are underway about the

need to establish a national facilitation certification program. The training reforms will provide a good

opportunity to bring attention and awareness to critical technical and practical issues such as the design,

construction, maintenance and sustainability of sub-projects; and occupational health and safety as well as

the facilitation of voluntary land donation. In addition, the Project Operations Manual (PTO) will be

revised to reflect changes to implementation with the commencement of the VL, which involve the

application of new government regulations and guidelines.

Although more than 100 staff will be transferred over from MoHA’s PMD to MoV, MoV is currently

limited in the skills of available personnel to manage the technical functions and day-to-day

responsibilities of the Project. As such, key technical and fiduciary personnel will be required to oversee

and implement the Project. To mitigate these risks, additional staff in the Secretariat have been agreed to,

and they will either be nominated from within MoV or recruited as consultants over the coming months.

The early mobilization of key TA (five key specialists) to support the inventory and handover of materials

and assets from MoHA, prepare work plans, implementation procedures and provide short-term support on

project management (team leader/project management officer), financial Management (two accountants),

procurement (procurement/contracts officer) and on the Project’s Monitoring Information Systems (MIS

Specialist), will be a critical factor in reactivating the Project.

In addition, a number of existing and new firms will be contracted to provide specialized IT and database

services and carry out certain activities, such as the refresher training for facilitators under Component 2

and the validation and inventory of all infrastructure and financial assets accrued under the PNPM Rural

portfolio as MoV has limited relevant experience in these areas. Where possible, existing consultant

contracts will be amended to ensure Project activities can resume quickly. However, in some cases, new

contracts may need to be procured. A revised Procurement Plan will be submitted to the Bank by June 30,

2015.

Appraisal Summary Change in Risk Assessment

Explanation:

In view of these implementation delays and other factors related to the transition of the Project, the

Project’s overall Risk Rating was increased from Moderate to Substantial.

Systematic Operations Risk-Rating Tool (SORT)

17

Risk Category Rating

1. Political and Governance Substantial

2. Macroeconomic Low

3. Sector Strategies and Policies Substantial

4. Technical Design of Project or Program Moderate

5. Institutional Capacity for Implementation and Sustainability Substantial

6. Fiduciary Substantial

7. Environment and Social Low

8. Stakeholders Moderate

9. Other N/A

OVERALL Substantial

Explanation

ANNEX 1

Results Framework and Monitoring

INDONESIA: RURAL 2012-2015 (P128832)

Project Development Objectives

Original Project Development Objective:

The PDO is for villagers in PNPM-Rural locations to benefit from improved local governance and socio-economic conditions.

Results

Core sector indicators are considered: Yes Results reporting level: Project Level

.

Project Development Objective Indicators

Status Indicator Name Core Unit of Measure Baseline Actual(Current) End Target

Revised Households have low-cost access

to infrastructure or services

selected by the community.

Percentage Value 0.00 0.00 80.00

Date 08-Nov-2012 30-Sep-2014 31-Dec-2015

Comment Baseline not

previously

tracked

systematically

and not

previously

compiled.

Incidents of

Benefits Survey

data collected.

Analysis to be

completed in mid-

2015.

Households have low-cost access

to infrastructure or services

selected by the community.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


previously

tracked

Incidents of

Benefits Survey

data collected.

19

systematically

and not

previously

compiled.

Analysis to be

completed in early

2015.

Revised Communities are involved in

participatory and democratic

forums for planning,

implementing and overseeing

initiatives that directly address

local development priorities

Number Value 2270000.00 3600000.00 3000000.00

Date 08-Nov-2012 30-Sep-2014 31-Dec-2015

Comment 2.27 million

participating in

hamlet-level

consultative

meetings (2011)

Based on NMC

QPR for end June

2014. Result

exceeds 2014 target

of 3 million. The

previous result was

provided on the

basis of reporting

by the

implementing

agency. However,

upon further

investigation by the

task team, it was

determined that the

previous result

(14.2 million) was

incorrectly reported

as the

implementing

agency had been

double counting

beneficiaries across

the planning and

decision meetings.

Communities are involved in

participatory and democratic

forums for planning,

implementing and overseeing

Number Value 2270000.00 3600000.00 3000000.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2015

Comment 2.27 million Based on NMC

20

initiatives that directly address

local development priorities

participating in

hamlet-level

consultative

meetings (2011)

QPR for end June

2014. Result

exceeds 2014 target

of 3 million. The

previous result was

provided on the

basis of reporting

by the

implementing

agency. However,

upon further

investigation by the

task team it was

determined that the

previous result

(14.2 million) was

incorrectly reported

as the

implementing

agency had been

double counting

beneficiaries across

the planning and

decision meetings.

Revised Projects funded by PNPM provide

economic benefits (direct and

indirect) for community members.

Amount(USD) Value 0.00 0.00 10.00

Date 08-Nov-2012 30-Sep-2014 31-Dec-2015


previously

tracked

systematically

and not

previously

compiled.

Data collected

for sub-

2012/2013

Economic Analysis

to be carried out in

early 2015.

10% percentage

increase expected

at the end of

project. (Unit

measure not in

USD).

21

indicators

Projects funded by PNPM provide

economic benefits (direct and

indirect) for community members.

Amount(USD) Value 0.00 0.00 10.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


previously

tracked

systematically

and not

previously

compiled.

Data collected

for sub-

indicators

2012/2013

Economic Analysis

to be carried out in

early 2015.

10% percentage

increase expected

at the end of

project. (Unit

measure not in

USD).

No Change Change in productivity and/or

lower cost of access


Sub Type

Supplemental

No Change Local-level multipliers

Number Value 1.17 0.00 1.20

Sub Type

Supplemental

No Change Cost savings over regular

procurement


Sub Type

Supplemental

Revised Beneficiaries feel project

investments reflect their needs


Date 08-Nov-2012 30-Sep-2014 31-Dec-2015


previously

tracked

systematically

and not

Incidents of

Benefits Survey

data collected.

Analysis to be

completed in mid-

22

previously

compiled

2015.

Beneficiaries feel project

investments reflect their needs


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


previously

tracked

systematically

and not

previously

compiled

Incidents of

Benefits Survey

data collected.

Analysis to be

completed in early

2015.

Revised Direct project beneficiaries

Number Value 30000000.00 2500000.00 30000000.00

Date 08-Nov-2012 30-Sep-2014 31-Dec-2016

Comment Baseline value

was based on

the overly

optimistic

assumption that

the project

would cover all

villages in the

country (to date,

PNPM-Rural

has covered

about 60,000 of

Indonesia’s

73,000 villages).

As per NMC QPR

for end September

2014. Part of the

shortfall may be

explained by a

reduction in the

average block grant

(BLM) amount per

Kecamatan, which

decreased by about

25% from 2010 to

2013. Target not

achieved. The

previous result

included a typo and

should have

reported 27 million.

Direct project beneficiaries

Number Value 40000000.00 2500000.00 40000000.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2015

23


was based on

the overly

optimistic

assumption that

the project

would cover all

villages in the

country (to date,

PNPM-Rural

has covered

about 60,000 of

Indonesia’s

73,000 villages).

As per NMC QPR

for end September

2014. Part of the

shortfall may be

explained by a

reduction in the

average block grant

(BLM) amount per

Kecamatan, which

decreased by about

25% from 2010 to

2013. Target not

achieved. The

previous result

included a typo and

should have

reported 27 million.

No Change Female beneficiaries


Sub Type

Supplemental

Intermediate Results Indicators

Status Indicator Name Core Unit of Measure Baseline Actual(Current) End Target

Revised % of poor community members

who participate in planning,

decision-making


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016

Comment The baseline

remains at 45%

throughout the

lifespan of the

project because

based on

previous

experience, the

task team

As per NMC QPR

for end September

2014. Target of

45% exceeded.

24

projected that

this would be

the highest

estimation that

could be

reached given

the national

scale up of the

project and

efforts are

instead focused

on ensuring that

the target would

be maintained.

% of poor community members

who participate in planning,

decision-making


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


remains at 45%

throughout the

lifespan of the

project because

based on

previous

experience, the

task team

projected that

this would be

the highest

estimation that

could be

reached given

the national

scale up of the

project and

efforts are

As per NMC QPR

for end September

2014. Target of

45% exceeded.

25

instead focused

on ensuring that

the target would

be maintained.

Revised % of participants in planning and

decision-making meetings who are

women


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


remains at 45%

throughout the

lifespan of the

project because

based on

previous

experience, the

task team

projected that

this would be

the highest

estimation that

could be

reached given

the national

scale up of the

project and

efforts are

instead focused

on ensuring that

the target would

be maintained.

As per NMC QPR

for end September

2014. Target for

2014 (45%)

achieved.

% of participants in planning and

decision-making meetings who are

women


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


remains at 45%

throughout the

As per NMC QPR

for end September

2014. Target for

26

lifespan of the

project because

based on

previous

experience, the

task team

projected that

this would be

the highest

estimation that

could be

reached given

the national

scale up of the

project and

efforts are

instead focused

on ensuring that

the target would

be maintained.

2014 (45%)

achieved.

Revised Percentage of work plans

completed in one program cycle

(18 months)


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016

Comment As per NMC QPR

for end September

2014. The target for

2014 (90%) has not

been achieved.

According to the

report, 1,591 of

35,688 villages

have completed

their work plans.

This figure is

considerably lower

than last year

27

because it is

calculated on a

yearly basis

(through an 18

month cycle that

completes in June

2015). At the time

of the QPR

submission (a third

of the way through

the project cycle),

the NMC had not

received all results

from the field.

> 85% of work plans completed in

one program cycle (18 months


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. The target for

2014 (90%) has not

been achieved.

According to the

report, 1,591 of

35,688 villages

have completed

their work plans.

This figure is

considerably lower

than last year

because it is

calculated on a

yearly basis

(through an 18

month cycle that

completes in June

28

2015). At the time

of the QPR

submission (a third

of the way through

the project cycle),

the NMC had not


from the field.

Revised % of infrastructure works of high

quality


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. The result is

within the range of

the target value for

2014 (80%).

% of infrastructure works of high

quality Percentage Value 67.00 79.00 80.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. The result is

within the range of


2014 (80%).

Revised % of infrastructure works utilized

by community members. Percentage Value 0.00 96.00 90.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. Result

exceeds target of

90%.

% of infrastructure works utilized


29

by community members. Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. Result

exceeds target of

90%.

Revised Sub-projects for which O&M

arrangements involving

community members are

established and functional.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. The result is

within the range of


2014 (85%).

Sub-projects for which O&M

arrangements involving

community members are

established and functional.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. The result is

within the range of


2014 (85%).

Revised % of RLF groups that are

evaluated as mature/ready to be

channeled to regular financial

institutions.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. Target for

2014 of 7.5%

exceeded.

% of RLF groups that are

evaluated as mature/ready to be


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015

30

channeled to regular financial

institutions.


for end September

2014. Target for

2014 of 7.5%

exceeded.

Marked for

Deletion

% of districts that conduct annual

coordination meetings between

PNPM-Rural (Satker) and other

GOI teams to discuss PNPM-

Rural activities.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. Target

for2014 (90%) not

achieved.

Revised % of district that link the district‘s

progress report into the local

government‘s website.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. Target for

2014 of 20%

exceeded.

% of district that link the district‘s

progress report into the local

government‘s website.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. Target for

2014 of 20%

exceeded.

Revised % of villages which are assisted to

review their mid-term village

development plans.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. Target for

31

2014 of 70% not

achieved. Of a total

of 67,100 villages,

only 1,818 have

reported to have

had their mid-term

plans reviewed.

This figure is

considerably lower

than last year

because it is

calculated on a

yearly basis

(through an 18

month cycle). At

the time of the QPR

submission, the

NMC had not


from the field.

% of villages which are assisted to

review their mid-term village

development plans.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. Target for

2014 of 70% not

achieved. Of a total

of 67,100 villages,

only 1,818 have

reported to have

had their mid-term

plans reviewed.

This figure is

considerably lower

than last year

32

because it is

calculated on a

yearly basis

(through an 18

month cycle). At

the time of the QPR

submission, the

NMC had not


from the field.

Revised % of BP-UPK that conducted

audit minimum once a year.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016

Comment estimated As per NMC QPR

for end September

2014. Target for

2014 of 65%

exceeded.

% of BP-UPK that conducted

audit minimum once a year.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015

Comment estimated As per NMC QPR

for end September

2014. Target for

2014 of 65%

exceeded.

Revised % of BKAD that conduct

supervision and M+E Percentage Value 40.00 88.00 50.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. Target for

2014 of 50%

exceeded.

% of BKAD that conduct


33

supervision and M+E Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. Target for

2014 of 50%

exceeded.

Revised % of villages with a functional

community oversight team. Percentage Value 50.00 72.00 60.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. Target for

2014 of 60%

exceeded. Villages

have reported to

have established

49,988 oversight

teams, of which

35,979 are reported

to be active and

functioning well.

% of villages with a functional

community oversight team. Percentage Value 50.00 72.00 60.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. Target for

2014 of 60%

exceeded. Villages

have reported to

have established

49,988 oversight

teams, of which

35,979 are reported

to be active and

34

functioning well.

Revised % of members of the community

oversight team who are women. Percentage Value 30.00 32.00 30.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. Target for

2014 of 30%

exceeded.

% of members of the community

oversight team who are women.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. Target for

2014 of 30%

exceeded.

Revised % of villages with updated

information board.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. Target for

2014 of 80%

exceeded.

% of villages with updated

information board.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. Target for

2014 of 80%

exceeded.

Marked for # of districts which establish


35

Deletion Economic Empowerment

Stakeholder Fora.

Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


was not

established

during

preparation.

However, was

subsequently set

by the

implementing

agency.

As per NMC QPR

for end September

2014. Target of

50% not achieved.

Revised # of SPP groups funded

Number Value 0.00 9206.00 13400.00

Date 08-Nov-2012 30-Sep-2014 31-Dec-2016


not provided.

As per NMC QPR

for end September

2014. No baseline

or target values

provided in the

PAD to compare

with. However, a

target of 13,400 has

been set by the

implementing

agency.

# of business proposals funded

Number Value 0.00 9206.00 13400.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


not provided.

As per NMC QPR

for end September

2014. No baseline

or target values

provided in the

PAD to compare

with. However, a

36

target of 13,400 has

been set by the

implementing

agency.

Revised Percentage of UPKs that are

evaluated as healthy

administratively and financially

healthy


Date 08-Nov-2012 30-Sep-2014 31-Dec-2016

Comment Data collected

in four

provinces of

RLF

Sustainability

Pilot

As per NMC QPR

for end September

2014. Target for

2014 of 70% not

achieved.

% of UPKs that are evaluated as

healthy administrative and

financially for RLF


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015

Comment Data collected

in four

provinces of

RLF

Sustainability

Pilot

As per NMC QPR

for end September

2014. Target for

2014 of 70% not

achieved.

Revised % of Non-Performing Loans

(Collectability 2-5).


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. Target for

2014 of 18% not

achieved.

% of Non-Performing Loans

(Collectability 2-5). Percentage Value 23.00 25.00 12.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

37

2014. Target for

2014 of 18% not

achieved.

Revised % of corruption cases that are

resolved


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. Target for

2014 of 45% not

achieved.

% of corruption cases that are

resolved Percentage Value 40.00 28.00 50.00

Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. Target for

2014 of 45% not

achieved.

Revised % of sub-districts audited each

year and for which the results are

published.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. Target for

2014 of 20% not

achieved. However,

based on the

project's previous

experience, the

target is expected to

be achieved.

% of sub-districts audited each

year and for which the results are


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015

38

published. Comment As per NMC QPR

for end September

2014. Target for

2014 of 20% not

achieved but as

with the project's

previous experience

is expected to be

achieved by the end

of the calendar

year.

Revised % of province that provide

complete monthly report in timely

manner.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2016


for end September

2014. Target for

2014 of 90%

exceeded.

% of province that provide

complete monthly report in timely

manner.


Date 08-Nov-2012 30-Sep-2014 31-Aug-2015


for end September

2014. Target for

2014 of 90%

exceeded.

.

Documents

World Bank Document...SPP Surat Permintaan Pembayaran (Payment Request) SPP Simpan Pinjam Perempuan (Women Saving and Loan Activities) TA Technical Assistance TOR Tim Koordinasi Tim